A Vision Plan for John F.

Kennedy International Airport

RECOMMENDATIONS FOR A 21ST CENTURY AIRPORT FOR THE STATE OF NEW YORK

A Report to the Governor from the Airport Advisory Panel

1 A Vision Plan for JFK
 January 4, 2017

Dear Governor Cuomo:

John F. Kennedy International Airport (JFK) serves as the international gateway
to the State of New York and to the nation, welcoming more international
passengers to the United States than any other airport in the country. In 2016,
the Airport served a record 60 million passengers and supported 285,000
jobs in the region.1 Despite its importance to the region, JFK is not the airport
passengers expect when arriving in one of the greatest cities in the world.

The Airport Advisory Panel found that JFK is in its current condition due to
the lack of an overall plan to guide the Airports development, resulting in an
inconsistent passenger experience, facilities that are quickly reaching their
capacity, on-airport roadways that are confusing to navigate, and an airport
that is increasingly difficult to access. Currently ranked 59th among the worlds
top 100 airports, JFK falls far short of todays global standards for airport
customers, visitors to our region, and our community.2

Airports serving other major global citiesLondon, Singapore, Istanbul, Los

Angeles and othersare investing to expand and to provide an enhanced
passenger experience. For the State of New York to remain competitive in
the ever more interconnected global economy, we must develop a world-
class gateway that is safe, secure and designed for the needs of the 21st
century passenger, as well as one that serves and respects the needs of
the neighboring communities in the Borough of Queens. However, if JFK
continues its status quo approach to development, beginning in the mid-
2020s, it will reach capacity and begin to lose passengers. Failing to act
would be catastrophic to the economies of the City, State, and the region if
passengers have increasing difficulty accessing New York, use competing
airports or choose not to travel at all.

The Panels recommendations for JFK focus on reconfiguring existing terminals

to maximize airside and landside capabilities and efficiencies to handle
passenger growth, enhance the overall passenger experience, and position
the Airport to meet the needs of the 21st century. Throughout all stages of
future development, the Port Authority must continue to enhance the overall
safety and security of the airport, while continuing to be a good neighbor to the
surrounding communities.

1 Port Authority of New York and New Jersey.

2 SkyTrax. Customer Nominated World Airport Awards, 20165.

2 A Vision Plan for JFK

 Beyond the on-airport improvements needed, virtually all stakeholders
emphasized the immediate need to improve access to JFK. On average, it
takes over an hour by car or multi-seat mass transit ride to access JFK. But
at some times of day, the trip can take twice as long. The unpredictable length
of travel time threatens to become an ever-greater problem, as passenger
growth will only exacerbate travel times and variability. If not addressed, the
limitations of the transportation system to get to JFK will adversely affect the
Airport and the community.

The importance of the overall economic growth of the State and the region,
along with the continued partnership with the community of Queens, are
fundamental considerations in the Panels Vision Plan for JFK. To deliver
these critical benefits, our report contains specific recommendations for
immediate redevelopment of outdated assets and details the next steps
necessary to ensure that the Panels recommendations can be translated into
an implementable master plan to guide development.

We thank you for the opportunity to serve and look forward to working with you
in turning the Panels Vision Plan for a new JFK into a reality.

Sincerely yours,

Dan Tishman

On behalf of the Airport Advisory Panel

CC:

John Degnan, Chairman, Port Authority of New York & New Jersey
Board of Commissioners, Port Authority of New York & New Jersey
Patrick Foye, Executive Director, Port Authority of New York & New Jersey
Thomas F. Prendergast, Chairman and Chief Executive Officer
Metropolitan Transportation Authority
Matthew Driscoll, Commissioner New York State Department of Transportation
Tony Collins
Jose Gomez-Ibanez
Queens Borough President Melinda Katz
Marilyn Jordan Taylor

3 A Vision Plan for JFK

Executive Summary
New York International Airport opened in and JFK is currently the nations busiest
1948 at Idlewild in Queens, New York with airport for international passengers serving
one terminal building and one runway serving the largest and densest population in the
200,000 annual passengers flying by propeller country.4
aircraft.
JFK is also a major driving force in the
In the nearly 70 years, the aviation industry regional economy, generating $15 billion in
has seen massive technological and wages and nearly 285,000 jobs.5 Despite
organizational change, and the airport, its importance to the region, JFK is not the
renamed John F. Kennedy International airport passengers expect when arriving at
Airport (JFK) in 1963, has grown to six one of the greatest cities in the world. It
separate terminals and four runways across is consistently given poor marks by the
4,930 acres. Over the last five years, passengers it serves. Last year, Skytrax, an
passenger demand at the Airport has grown independent firm that conducts international
22 percent, and the Airport served a record passenger surveys of the worlds airports,
60 million passengers in 2016.3 Today, the ranked JFK 59th out of the worlds top 100
Port Authority of New York and New Jersey airports.6
(Port Authority) operates the Airport,
4 U.S. Department of Transportation Office of the Assistant
Secretary for Aviation and International Affairs,
International Aviation Developments Series, 2015.
5 Port Authority of New York and New Jersey.
3 Port Authority of New York and New Jersey 6 SkyTrax. Customer Nominated World Airport Awards, 2016.

4 A Vision Plan for JFK

JFKs Current Challenges Airports central terminal area, contribute to
aircraft congestion on the ground and ground
JFKs challenges fall into five broad areas: delays far exceeding the national average.7
1) terminals and their configurations; 2)
the airports roadway network; 3) airport Operating Limitations Under current rules
operations and delays; 4) cargo operations; imposed by the federal government, JFK is
and 5) increasingly crowded, congested, and limited to 81 aircraft takeoffs and landings
unreliable transportation access to the airport. per hour, despite passenger airline demand
for more flights. This federal rule, known
as operating limitations, or slot controls
AIRPORT TERMINALS
constrains the Airports operations and
The evolution of JFKs terminal buildings prevents passenger demand from driving air
has been a history of separate projects with service frequency and routes.
private airlines or private terminal operators
designing and building individual terminals
CARGO FACILITIES
at the Airport, with no overall master plan
to guide development. As a result, todays With its close proximity to New York City
Airport is fragmented. It has an unbalanced and the larger metropolitan region, JFK is
terminal configuration with inconsistent levels one of the leading international air cargo
of service across six different terminals. centers in the world. Directly employing over
Without a guiding master planning framework, 15,000 people and supporting 50,000 jobs,
the Airports lack of easy connection between $8.6 billion in sales, and almost $3 billion in
terminals coupled with the current mix of wages, the JFK air cargo operation is critically
older and newer terminals will never yield a important to the regions economy.8 In the
consistent world-class aviation experience for area of Queens directly adjacent to JFK,
all passengers using JFK. transportation and warehousing jobs account
for over one in every ten jobs, four times
higher than the citywide average.9
AIRPORT ROADWAYS
The roadways on the Airport are often Despite its built-in geographic advantages
congested and difficult to navigate for and its high volume of cargo business,
passengers with multiple bottlenecks at JFKs cargo operation has been unable to
terminal entrance ramps and frontages. The achieve its full potential. The Airport has an
current overall roadway design does not inefficient cargo operation that has steadily
support future passenger growth. lost volume and has seen its leadership
position in the market erode over the last
CONSTRAINED AIRPORT ten years. Nearly two-thirds of the Airports
OPERATIONS AND DELAYS existing cargo facilities do not meet current
industry standards. In addition, the facilities
Taxiways Physical constraints related to
shallow sites at Terminals 1 and 7, along
with the Airports overall existing taxiway 7 Federal Aviation Administration, NextGen, 2015.
8 New York city Economic Development Corporation, Port
configuration, which does not allow for Authority of New York and New Jersey, JFK Air Cargo Study, 2013.
unimpeded circular aircraft flow around the 9 Office of the New York State Comptroller, An Economic
Snapshot of the Greater Jamaica Area in Queens, 2016.

5 A Vision Plan for JFK

are spread across the airport in four separate JFK AirTrain for service to the airport. Despite
zones. The result is inefficient cargo these challenges and limitations, the JFK
operations, additional costs to businesses, AirTrain system has experienced tremendous
and increased transfer times. growth in ridership outpacing all projections
made when the project was planned. This
AIRPORT ACCESS impressive growth demonstrates the need for
and the importance of high quality rail mass
Transportation to and from JFK has become
transit access to JFK. However, the current
severely challenged. Not only do the existing
JFK AirTrain system is itself overly crowded at
options seriously lag compared to other
peak times, with paid ridership of the system
world-class international airports, but the
nearly tripling since opening in 2003.
transportation system at many times of
the day is simply unable to accommodate As the Airport continues to grow, accessing
the growing demands of the Airport. These JFK will only become more difficult. By
shortcomings frustrate passengers and 2030, the number of passengers at JFK is
result in vehicle congestion spilling into the expected to grow by nearly one-third to over
surrounding Queens community. 75 million passengers. This overall growth
will make roadway congestion, as well as
Under current traffic conditions, travel time
transit access, to and from JFK even more
to JFK by car is extraordinarily unpredictable.
challenging than it is today. Any assessment
The trip to JFK from midtown Manhattan can
of JFK must view both the current condition
range anywhere from 35 minutes to two hours
and the Airports ability to manage the future
or more. Using mass transit, passengers have
trend line as simply unacceptable.
the option to take the subway or commuter
rail to get to a difficult-to-navigate and dated
station at Jamaica in order to transfer to the

6 A Vision Plan for JFK

Consequences for While other global cities around the world
are working towards, or have already built,
Failing to Act modern, world-class airports, New Yorks
If JFK continues on the current course of airports have not remotely kept pace. In
incremental development, future airport order to remain competitive in a 21st
capacity and improvement of the passenger century global economy, JFK requires a
experience would be severely limited. As early comprehensive airport-wide master plan
as the mid-2020s, JFK demand will exceed to meet increasing passenger demand and
capacity by up to three million passengers to become a world-class airport worthy of
annually. For each million passengers not serving the greatest city in the world.
accommodated, the New York/New Jersey
region loses approximately $140 million in
annual wages, $400 million in annual sales,
and 2,500 jobs.10 Failing to act to meet this
growing demand would be catastrophic to
the future growth of the City, State, and the
region.

10 Port Authority of New York and New Jersey.

7 A Vision Plan for JFK

Panel Recommendations Accommodate Growing Demand
and Provide for a Consistent,
With this in mind, New York Governor Andrew
World-Class, and Secure
Cuomos Airport Advisory Panel recommends
a series of global best practices that will
Passenger Experience
provide for the development of a world-class The Panel recommends a transformative
airport that is befitting of the State of New approach for redeveloping the Airport as a
York and that respond appropriately to the modern, state-of-the art facility that puts the
Airports growing passenger demand. The passenger first. Overall, this calls for a more
Panel recognizes that completely tearing efficient use of land within the airports central
down the Airport to build anew would be terminal area and includes the following
operationally impossible and cost prohibitive. recommendations for immediate action to
However, the piece-meal, ad-hoc, and better position JFK to meet todays standards
inconsistent terminal development of the for a leading global airport.
past cannot continue. Therefore, the Panel
recommends multiple critical improvements to
AIRPORT TERMINALS
the Airport and its supporting infrastructure
some near-team and incremental, and others Todays six terminals are fragmented and
more sweeping and transformationalthat provide inconsistent levels of service that do
achieve positive change without precluding not support the passenger growth needs of
future development to accommodate the JFK.
regions long-term needs. More importantly,
The Panel recommends:
the Panels recommendations emphasize the
need for an airport-wide master plan to better The Port Authority should develop global,
position the entire airport to meet the needs world-class standards applicable to all
of the future. JFK terminals to ensure a more consistent
passenger experience, as todays facilities
are modernized and redeveloped.

All future terminal expansion and

redevelopment projects should be planned
with a focus on interconnection with other
terminals to enable JFK to grow over time
into an integrated airport experience.

Older terminals (such as Terminals 1, 2

and 7, opened in 1998, 1962, and 1972,
respectively) should be redeveloped in
partnership with their private lessees into
terminal facilities that provide a world-class
airport experience and accommodate
additional gates.

8 A Vision Plan for JFK

 This includes a development plan that AIRSIDE AND OPERATIONAL
makes informed decisions about the IMPROVEMENTS
retention or modification of existing JFK still ranks as one of most the delayed
infrastructure to improve the airports airports in the country, with ground delays
overall configuration. far exceeding the national average.11 JFKs
operations are also constrained due to a
The Port Authority should work with
federal rule that caps the number of take-offs
the private operators of JFKs newer
and landings each hour at the Airport, which
terminals (such as Terminals 4, 5, and
serves as a significant barrier that prevents
8, opened in 2001, 2008, and 2007,
growing passenger demand and the needs of
respectively) to enhance the passenger
the traveling public to govern the growth of
experience and provide additional capacity
the airport.
to accommodate the projected future
passenger growth of JFK. The Panels recommends:

The Port Authority should promptly engage Relocate Taxiways A and B to the west
with the private lessees on a mutually and expand taxiways as necessary as
agreeable framework that enhances the the airports terminal footprint evolves to
passenger experience. provide more efficient aircraft operations
and reduce ground delays.
AIRPORT ROADWAYS
Work with the Federal Aviation
The current airport roadway network is Administration (FAA) to reduce or remove
complex and confusing for drivers within operational limitations.
the Airports central terminal area. Terminal
drop-off and pick-up locations are already The Port Authority should continue to
bottlenecks and congested at todays evaluate options for additional airside
passenger levels. As passenger volumes capacity.
continue to grow, on-airport congestion will
steadily increase in the absence of aggressive ENHANCED SECURITY
action.
JFK must continue to remain one of the most
The Panel recommends: secure airports in the world. As the Airport
is developed and continues to grow, and in
Redesign the on-airport roadway network light of recent experiences elsewhere, the
to evolve over time into a ring-road Panel recommends that the Port Authority
configuration and provide expanded should initiate periodic top-to-bottom
parking capabilities within the airports security reviews to explore additional security
central terminal area as well as improved measures (with a particular focus on new
way-finding, to create a more efficient, technology) to maintain the safety and
simple airport roadway network, and security of passengers, employees, and the
appropriately sized and centrally located surrounding community as the top priority
parking facilities.

11 Federal Aviation Administration, NextGen, 2015.

9 A Vision Plan for JFK

of the Airport. The Panel recommends The panel recommends:
that JFK design the necessary optionality
and flexibility to allow Airport facilities to Provide for new, consolidated and
easily incorporate future security advances. expanded cargo facilities in the north area
Following the false active shooter incident in of the Airport where there is convenient
August of 2016, Governor Cuomo and U.S. road access to off-airport cargo
Department of Homeland Security Secretary operations.
Jeh Johnson initiated a Multi-Agency Security
At an appropriate location, minimize the
Review Team of the incident to ensure the
footprint of supporting infrastructure while
Airport is ready to respond dynamically to
maintaining a superior level of service.
evolving threats. The Panel supports the
recommendations of the Review Team, which
include establishing a unified operations Expanded and Improved
center, coordinated training, emergency Transportation Access to the Airport
preparedness, and developing a plan for
mass evacuation for all agencies at the The Panel recognized that with the expansion
Airport to ensure the safety and security of of JFK to accommodate a growing passenger
JFK.12 This review is an example of the type demand, it is critical that improvements be
of review the Port Authority should undertake made to improve and increase transportation
on a regular basis in the future. access to the airport both on the
roadways and through mass transit. Based
MORE EFFICIENT CARGO OPERATIONS on discussions with the New York State
AND SUPPORT FACILITIES Department of Transportation (NYSDOT) and
the New York Metropolitan Transportation
Cargo will continue to remain an important
Authority (MTA), the Panel has recommended
element of JFK activity and the regions
the following:
global competitiveness. Yet the Airports
existing cargo facilities do not meet current
industry standards and are spread inefficiently ROADWAY IMPROVEMENTS
across the Airport. Other supporting Travel time by car to JFK from midtown
infrastructure such as cogeneration, fueling, Manhattan can take from 35 minutes to
aircraft maintenance, aircraft deicing two hours or more. The Panel consulted
during inclement weather, and other airport with NYSDOT to develop the following
operations are essential to world-class recommended changes to the regional
airports. At present, these support facilities roadways that serve JFK.
are neither well-sized nor well-positioned at
the airport. They should be appropriately
sized and fit within the airports design.

12 New York State Governors Office, John F. Kennedy

International Airport Multi-Agency Security Review Team, 2016.

10 A Vision Plan for JFK

 Complete reconstruction of the MASS TRANSIT IMPROVEMENTS
interchange between the Grand Central JFK is well behind other world-class
Parkway and the Van Wyck Expressway international airports when it comes to rail
to provide an additional access lane in mass transit access to and from the Airport.
each direction to better handle the traffic The current mass transit system lacks a one-
connecting from one of these major seat ride and requires a difficult and confusing
arteries to the other, thereby addressing transfer to an increasingly overcrowded JFK
the worst bottleneck to and from the AirTrain. Consideration should be given to the
Airport. following:
Utilizing existing right-of-way, expand the A complete overhaul of the station
Van Wyck Expressway from three lanes to complex at Jamaica to improve the
four lanes in each direction. connection between AirTrain and the
Long Island Rail Road (LIRR) and the
A fourth lane could be utilized as a
MTA Subway. Such an overhaul should
Managed Use Lane dedicated exclusively
include an upgraded mezzanine over the
to airport traffic, such as express bus
LIRR trains and a modernized Sutphin
service and other high occupancy vehicles.
Boulevard/Archer Avenue subway station
Invest in short-term roadway with information systems and walkways
improvements, including restriping of making it easier for passengers carrying
lanes, relocating ramps, and Intelligent baggage to connect to the AirTrain.
Transportation Systems (ITS) and
The JFK AirTrain should be expanded from
Active Transportation and Demand
two cars up to four cars per train with
Management (ATDM) Programs to alleviate
more frequent service to provide additional
some congestion immediately. The
capacity, with the goal of more than
improvements should include improving
doubling the AirTrains current capacity.
several heavily congested westbound exits
on the Van Wyck Expressways heading The MTA and the Port Authority should
from JFK into the City. also conduct a comprehensive analysis
to evaluate the possibility of a one-seat
Evaluate additional long-term
ride to JFK Airport from Penn Station
improvements at the Grand Central
New York, Grand Central Terminal, and/
Parkway and Brooklyn Queens
or Brooklyns Atlantic Avenue/Barclays
Expressway interchange and exit
Station.
ramps, the Long Island Expressway and
Grand Central Parkway interchanges,
the Westbound Nassau exit to Belt
Parkway and North Conduit Ave, and the
Long Island Expressway Collector and
distributor roads between 97th Street and
108th Street.

11 A Vision Plan for JFK

Project Delivery Considerations redevelopment may not require any Port
and Public Private Partnerships: Authority investment at all. In other projects,
The Key Role of Private Financing such as JFK AirTrain, the Port Authority
should consider leasing, with clear standards
In March 2016, the Port Authority approved and guidelines, the current operation to a
a $4 billion public-private partnership to tear private operator to expand the system based
down the existing Terminal B at LaGuardia on private capital investment.
Airport and replace it with a new 21st century
state of the art terminal and new Central Conclusion
Hall to unify for the first time Terminal B
with Terminal C. The project is the largest The Panels Vision Plan for a 21st century
public private partnership in the United JFK are intended to provide a high-
States. Two-thirds of the $4 billion price tag level, conceptual approach and planning
is financed with private funds and existing framework to guide future development.
passenger fees. Subject to approval from The recommended first step towards
the Port Authority Board of Commissioners, development of a new JFK is for the Port
construction will also move forward on Authority to create a new JFK redevelopment
replacing LaGuardias Terminals C and D, office headed by a single project executive
which are currently operated by Delta Airlines. to develop and implement an airport-
This portion of LaGuardias rebuild is an wide master plan consistent with the
approximately $4.5 billion project of which recommendations of the panel, subject to
$3.9 billion is financed by the private sector. approval from the Port Authority Board of
As a whole, an entire new LaGuardia Airport Commissioners.
will be constructed for approximately $8.5
As a whole, the Airport Advisory Panels
billion, the overwhelming majority of which
Vision Plan for JFK provide the framework
will be paid for by the private sector
and overall strategic approach to transform
To deliver a 21st century JFK on the scale the existing facility into the world-class airport
envisioned by the Panel and consistent that the State of New York and the region
with the Port Authoritys achievement at deserve, as well as maintain the Airports
LaGuardia, the Port Authority should employ status as the nations leading international
a wide range of innovative financing tools gateway.
for JFK redevelopment to maximize private
sector investment, particularly in modernizing
JFKs terminals. As countries around the
world continue to utilize private sector capital
and innovation to deliver infrastructure
projects, the Port Authority should use
its funds to leverage private financing to
develop new state-of-the art airport terminals
consistent with the Panels recommendations
for the Airport. In some projects, terminal

12 A Vision Plan for JFK

13 A Vision Plan for JFK
Introduction
New Yorks participation in the global A sample of the SkyTrax 2016 customer
economy is heavily dependent on the success reviews of JFK include comments such as: 16
of John F. Kennedy International Airport (JFK).
Among New Yorks many transportation The airport itself is outdated and an
assets, JFK is one of the most important.
It is the largest of the regions three major embarrassment to the great state of
airports, and it handles the most international New York...
passengers in the nation.13 Operated by the
Port Authority of New York and New Jersey The standard of terminals varies,
(Port Authority), JFK directly employs 37,000 but none up to the high standard of an
employees and is a major driving force in the
important airport you expect
regional economy, generating $15 billion in
wages and nearly 285,000 jobs across the New York JFK is very disorganized.
region.14
Even renovated, JFK is dirty and worn
In spite of its importance to the overall New out
York and New Jersey metropolitan region,
JFK is ranked by passengers as low as 59th I wont be back at JFK even if it
among the worlds top 100 airports.15 The
means travelling with a different airline
airport is in the condition that it is today due
to: 1) the lack of a coordinated, cohesive and I would not recommend to friends
airport plan; 2), terminals that were developed or family
on a piece-meal, ad-hoc basis resulting
in varying levels of quality and passenger
service across the airport; and 3) a confusing
on-airport roadway system with multiple
bottlenecks at terminal entrances. According
to the SkyTrax air travel review forum,
passengers on average give JFK three (3)
stars out 10 for quality and customer service.

13 U.S. Department of Transportation Office of the Assistant

Secretary for Aviation and International Affairs,
International Aviation Developments Series, 2015.
14 Port Authority of New York and New Jersey, Annual Traffic
Report, 2015.
15 SkyTrax. Customer Nominated World Airport Awards, 2016. 16 SkyTrax. Customer Nominated World Airport Awards, 2016.

14 A Vision Plan for JFK

Airport Advisory Panel
In January 2015, New York Governor Andrew The Governors charge to the Airport
Cuomo created the Airport Advisory Panel Advisory Panel was to develop a Vision Plan
to advise the State of New York and the to guide development of JFK International
Port Authority on the modernization of Airport for the short, medium, and long-
LaGuardia and JFK Airports. On July 27 of term. The Panels recommendations
that same year, the Governor unveiled the provide the framework to modernize and
Panels holistic master plan and his vision revitalize JFK into a 21st century Airport
for LaGuardia Airport. Action proceeded that puts the passenger first and expands
rapidly in implementing the Panels the Airport to accommodate a vigorously
recommendations and the Governors vision. growing passenger demand. The Panels
In March 2016, the Port Authority Board of recommendations also seek to maximize job
Commissioners acted to move forward with creation and economic opportunities for the
the construction of a new Terminal B and the New York-New Jersey metropolitan area,
first phase of a new LaGuardia Airport. The immediately and over the coming decades.
$4 billion project is the largest public-private
partnership in the country, with two-thirds of The Panel began its work in the fall of 2015
the cost funded through private financing and and met together as a Panel numerous times
existing passenger fees. The next phase of throughout 2016. In addition to examining
a new LaGuardia Airport, the replacement of JFKs facilities in person, the Panel met
Terminals C and D, also with a large majority with the private operators of JFKs various
of the cost financed by private capital, is terminals and worked closely with the
expected to start construction in 2017, Port Authority's Aviation Department, New
subject to final approval by the Port Authority York State Department of Transportation,
Board of Commissioners. and the New York MTA to develop its
recommendations. The Port Authoritys
Unlike LaGuardia Airport, where terminals Aviation Department also retained the
and airport operations are squeezed into 680 experienced and well-respected aviation-
acres, JFK is comprised of six disconnected consulting firm, Ricondo & Associates, to
terminals of varying ages operated by provide technical analysis to the Panel,
individual private operators, as well as a background on global best practices, and
significant air cargo operation, four runways, general expert support for the development of
and over 30 miles of roadways spread across the Panels recommendations for JFK.
4,930 acres,17

17 The Port Authority of New York and New Jersey.

15 A Vision Plan for JFK

The Panel considered three potential paths to
transform JFK into a 21st century airport:
Tear down and build Preserve and expand Transform the airport
a new airport existing infrastructure for the 21st century
Consists of tearing down the A status-quo development Completely redevelop, modify,
existing Airport and construct approach of expanding existing or expand existing facilities
completely new configuration terminals and prioritizes and infrastructure over time
for JFK with all new facilities. the preservation of existing but within an aggressive
Such an approach could be facilities. This approach would future-oriented master plan
very expensive and difficult to primarily leave the Airport in its that provides for staged
implement while keeping the present condition. redevelopment the future
Airport operational. focused on instituting 21st
century airport standards to
ultimately transform the Airport.

Completely tearing down the airport and

replacing it with a new facility is not only GOVERNORS AIRPORT
cost-prohibitive, but the continued operation ADVISORY PANEL
of the airport also is far too important to Dan Tishman
the regions economic viability. Continuing Vice Chairman at AECOM Technology
the status quo with a primary emphasis on Corporation and Principal and Vice
preserving and expanding existing terminals Chairman of Tishman Realty
and infrastructure largely with the Airports
current configuration is the development Tony Collins
approach that has resulted in the condition President, Clarkson University
that the airport is in today. Instead, the Panel
Jose Gomez-Ibanez
opted for a pragmatic approach of a clear
Professor of Urban Planning and Public
master plan to transform JFK into a world-
Policy, Harvard University
class airport modifying the existing facilities
as much as possible, but also constructing Melinda Katz
new facilities where necessary. The Panel Queens Borough President
believes that this is the best opportunity
to accomplish significant steps that can Marilyn Jordan Taylor
begin immediately and continuously evolve Professor of Architecture and Urban
over time. Such an approach will not only Design, Former Dean University of
provide for a superior and consistent airport Pennsylvania
experience for passengers, but it will also
guide development in a manner to enable
future growth and to allow JFK to nearly
double the number of passengers it serves
over the next 35 years. To solve for this
growing regional challenge, the Panel focused
not only on the on-airport issues, but also on
transportation access to the airport.

16 A Vision Plan for JFK

The Panel concluded that planning for The Panel further recognized that access
JFKs future should provide a balanced to the airport is a critical piece of offering
approach of systematic improvements a superior airport experience. Today, travel
to on-airport facilities such as terminal, to and from JFK is unpredictable. From
on-airport roadway, airfield, and airspace midtown Manhattan, travel time can vary
capacity and should also address off-airport from 35 minutes without traffic to two hours
transportation capabilities. All components or more with traffic. Major access ways to
must accommodate a high level of demand the airport are frequently congested at the
at top-level quality service levels without one worst level (Level of Service F). Public
component becoming overloaded relative to transportation to the Airport can often be
the others. confusing and tedious for passengers.
Conditions will only worsen as both the
For the on-airport elements, the Panel studied airport and the region continue to grow. To
the existing airport configuration. The Panel address the issue of improved access to
concluded that the airport should strive for JFK, the Panel solicited input from the New
a total of approximately 250 narrow body York Metropolitan Transportation Authority
equivalent gates, up from the current number (MTA) and New York State Department of
of 167 narrow body equivalent gates, to fully Transportation (NYSDOT) in addition to
meet the growing demand of the airport. the Port Authority. The agencies partnered
However, the Panels recommendations together to provide support in developing the
cover more than just increasing the number Panels recommendations to improve access
of gates. At least as important, the Panel to the airport.
focused on the need to develop an airport
with a world-class level of service. For JFK
to succeed, the development must proceed
through a master plan that focuses on the
best interest of the Airport as a whole. The
Panels recommendations for JFK were
developed to ensure near-term decisions are
consistent with and, do not preclude longer-
term growth and expansion, to deliver a high
quality passenger experience.

17 A Vision Plan for JFK

JFKs Existing Limiting Factors

To provide for a superior airport experience as the JFKs central terminal area. The
and to meet regional needs, JFK faces a Airports overall terminal design today cannot
number of growing challenges both on- accommodate meaningful passenger growth.
airport as well as in the transportation
system accessing the airport. It is important Some of the terminal buildings at JFK were
that both on-airport development and constructed in the past ten years, whereas
transportation access to the airport have other terminals were constructed as long
appropriate levels of capacity for a balanced ago as 1962. The varying levels of age and
21st century airport. quality of JFK terminals also contribute to
the Airports inabillity to perform as a world-
Challenges On-Airport class facility. Recently constructed terminals.
Terminals 4, 5, and 8 function reasonably well.
Expanded in 2015, Terminal 4 is the busiest,
AIRPORT TERMINALS
and also has the highest productivity in terms
The evolution of JFK has been a history of the average number of annual passengers
of separate, individual transactions with using each gate. Also relatively new, opening
private airlines or private terminal operators in 2007, Terminal 8 is well-positioned for
designing and building individual terminals at expansion at the nearby undeveloped site
the airport. The existing airport is fragmented known as Parcel M. Opening in 2008,
with inconsistent facilities and levels of Terminal 5 at JFK is an operation with high
service across six different terminals situated customer satisfaction. With plans to open in
on an area of roughly 700 acres known

18 A Vision Plan for JFK

2018, the Historic TWA Flight Center Hotel
will also transform the storied Saarinen
terminal into a world-class 505-room hotel
with best-in-class services.

The older Terminals 1, 2 , and 7 are

physically constrained, limiting capacity and
compromising the overall design of each
terminal. Constructed in 1998 on a physically
constrained site, Terminal 1 includes a head
house with ticket lobby and other amenities
that are too small. As a result, they are
congested at todays passenger levels and
not designed to meet todays standards for a
world-class international terminal. Terminal
2, which opened in 1962, is an aging and
rapidly deteriorating facility that also does
not represent todays passenger terminal additional gates for airlines opting to grow
development standards.18 An expansion of at the airport. Under the current piecemeal
the dated and below-standard Terminal 7, development approach, it would be difficult
which opened in 1972, is impeded by an for the existing terminal configuration to
electrical cogeneration facility located just support the approximately 250 narrow body
outside the terminals front door. equivalent gates, up from the current number
of 167 narrow body equivalent gates, that will
The airports lack of easy connection and mix be needed to fully meet the growing demand
of new and old terminals virtually eliminates at the airport over the next 10, 20, or 30 years
the ability to provide a consistent world-class at the level of world-class service that should
aviation experience for all passengers using be expected of New Yorks top international
JFK. The unconnected terminal configuration gateway.
makes it difficult to respond to provide

18 Port Authority of New York and New Jersey.

19 A Vision Plan for JFK

ON-AIRPORT ROADWAYS
The roadway network within JFKs central
terminal area is divided into five areas for
motorists to access the different terminals,
parking garages, and expressways
connecting to the Airport. The Van Wyck
Expressway and JFK Expressway loop
into the Airports central terminal area in a
clover-leaf pattern, creating multiple flows
of inbound and outbound traffic difficult
for drivers to understand. In front of each
terminal, the existing passenger drop-off
and pick-up areas are insufficient with major
bottlenecks, particularly at Terminals 4 and
5. Other terminals at JFK were not built to
accommodate the forecasted demand and
soon will be oversubscribed as passenger
levels grow. Todays parking garages are
located near each terminal, but they are not
built in balance or scale that benefits the
airport. For example, parking garages located
in front of Terminal 4 and 5, are routinely
filled while others such as the parking garage
located in front of Terminal 7 routinely have
excess capacity. In general, the Airports
roadway network is overly complicated, with
decision points located closely together,
requiring a number of vehicle merges and
weaves to navigate the system.

20 A Vision Plan for JFK

Exacerbating this challenge is the fact that
JFKs on-airport roads and parking garages
were designed to accommodate around 50
million annual passengers. With current
annual passenger levels exceeding this
level by 10 million passengers, the existing
roadway network is significantly over
burdened and its inadequacy will only worsen
as passenger levels grow.

CONSTRAINED AIRPORT
OPERATIONS AND DELAYS

Operational Limitations (Slot Controls)

The Port Authoritys large hub airports
have been operating under a set of federal
government-imposed demand management
restrictions since 1969, initially in the form
of the High Density Rule and most recently region and prevents airlines from providing
under the FAA Orders Limiting Operations.19 the frequency and routes at JFK in response
Through these practices, the FAA has limited to passenger demand.
the number of takeoffs and landings allowed
during most hours of the day at the Port
Taxiways
Authoritys airports. As a result, JFK is limited
to 81 combined aircraft takeoffs and landings JFKs taxiway configuration contributes
per hour, but the Port Authority estimates that to aircraft congestion and ground delays
the Airport can handle at least 86 takeoffs and far exceeding the national average.20 The
landings an hour under the current air traffic existing taxiway configuration also does not
control system. (JFK could handle more than allow for unimpeded circular aircraft flow
86 takeoffs and landings in the future under surrounding the Airports central terminal
a technologically upgraded air traffic control area. For example, Taxiways A and B were
system.) Such an immediate increase in the constructed around and to accommodate
hourly number of takeoffs and landings would Terminal 8, cargo facilities, the Van Wyck
enable JFK to handle another 20 to 30 flights Expressway and AirTrain right-of-way. This
per day. The federally imposed hourly cap is configuration limits direct aircraft access
already restricting business potential at the from the Terminals to the runways, which can
airport and limiting the extent of air service increase an aircrafts ground time. Relocating
available to the traveling public. Though the these taxiways would free up airside real
demand exists, this federal rule artificially estate for expanded terminal development
constrains existing air travel capacity in the while also streamlining the airports taxiways
around the central terminal to reduce ground
19 Although EWR was included in the original High Density Rule,
slots were never imposed at EWR until 2008. 20 Federal Aviation Administration, NextGen, 2015.

21 A Vision Plan for JFK

delays. Aircraft taxi lanes at some terminals
are single lanes, which causes congestion on
the ground for arriving and departing aircraft.
Without dual taxi lanes, aircraft at times are
forced to wait for access to gates and access
to the runway if a one-way taxiway is blocked
by another aircraft.

Existing Runways
JFKs existing airfield consists of four
runways: two widely spaced parallel runways
oriented in a northwest/southeast direction
(Runways 13L-31R and 13R-31L) and two
closely spaced parallel runways oriented in
a northeast/ southwest direction (Runways
4L-22R and 4R-22L).

Current flight levels are served on the existing

runways at an adequate level of service.
Once the FAA implements NextGen,21 a
new air traffic control system to replace the
existing 1950s-era radar-based system, the
current runways will be able to accommodate
an increased number of takeoffs and
the Borough of Queens, New York City, and
landings. Once the implications of the new
the region. Ranked 19th globally by air freight
air-traffic control system are fully analyzed,
tons, JFK is one of the leading international
the Port Authority will need to evaluate
air cargo centers, offering direct access to the
whether the existing runways can adequately
worlds largest cities both through all-cargo
meet the future projected demand at the
aircraft and wide-body passenger aircraft
airport.
flights.22 Over 15,000 people at JFK work
directly in air cargo related jobs. Regionally,
CARGO AND SUPPORT FACILITIES the air cargo industry supports over 50,000
Air cargo is an essential component of JFK jobs, $8.6 billion in sales and almost $3.0
enabling the movement of a tremendous billion in wages.23
volume of goods to and from this region and
serves as a major economic generator for

21 JFK, along with the rest of nations airports, operate under a

radar-based air-traffic control system from the 1950s. The current
system results in an inefficient use of the regions air space and
contributes to the increasing number of delays at the regions airport.
NextGen is an initiative led by the FAA to modernize the nations air 22 New York city Economic Development Corporation, Port
traffic control system that when fully implemented will reduce the Authority of New York and New Jersey, JFK Air Cargo Study, 2013.
impact of poor weather conditions, decrease separation standards 23 New York city Economic Development Corporation, Port
for more efficient arrivals, and lower aircraft exhaust emissions. Authority of New York and New Jersey, JFK Air Cargo Study, 2013.

22 A Vision Plan for JFK

However, many of JFKs cargo facilities are Challenges with
dated and substandard. Nearly two-thirds
of the airports existing cargo facilities do Transportation Access
not meet current industry standards.24 to the Airport
Further, these facilities are spread across
the Airport in four separate zones. The Access to JFK has become extremely difficult
result is an environment that is excessively and unreliable due to a congested roadway
costly for cargo operators at the Airport due network and an increasingly over-crowded
to increased transfer times and inefficient mass transit system. Traveling to the Airport
facilities.25 has become time consuming and notoriously
unreliable. Not only do the options for airport
Given the volume of international traffic and access severely lag compared to other
JFKs proximity to New York City, together world-class international airports, the system
with the prevalence of belly cargo on provides a subpar passenger experience
passenger flights, air cargo will continue and is unable to accommodate the growing
to remain an important element of airport demand of the airport. Collectively, the
activity. Updating and streamlining JFKs impacts of the congested system spill over
cargo operation is critical to maintaining into the surrounding community.
global competitiveness for the region.

AIRPORT SUPPORT FACILITIES

Existing airport-supporting infrastructure
including cogeneration, fueling, aircraft
maintenance, aircraft deicing during
inclement weather, and others are essential to
a world-class airport operation. Today, these
facilities are distributed somewhat randomly
throughout the airport, consuming nearly 15
percent of airport real estate, not including
the cargo operation. As the airport grows and
develops, each support facility should be
evaluated for capacity, design, efficiency, and
location.

24 New York city Economic Development Corporation, Port

Authority of New York and New Jersey, JFK Air Cargo Study, 2013.
25 New York city Economic Development Corporation, Port
Authority of New York and New Jersey, JFK Air Cargo Study, 2013.

23 A Vision Plan for JFK

ROADWAYS MASS TRANSIT
Under current traffic conditions, travel time Using public transit, JFK passengers have
to JFK by road is hugely unpredictable. the option to take the subway or commuter
From midtown Manhattan, travel time on rail before transferring to the JFK AirTrain for
the roadway can vary from 35 minutes service to the Airport at Jamaica or Howard
without traffic to two hours or more with Beach station. The transfer in Jamaica is
traffic. Major access ways to the Airport, particularly difficult to navigate for passengers
the Belt Parkway and Van Wyck Expressway with baggage, and is in a dated facility that
(VWE), are frequently congested at the worst lacks basic amenities such as climate control
level reported by NYSDOT (Level of Service and information displays. Further, passengers
F). This variability and uncertainty makes are often met with long wait times at the
it difficult for travelers to plan and carries station as the current JFK AirTrain system is
a severe and unacceptable risk of missed oversubscribed during peak hours with its
flights. Business travelers often feel forced current 7-10 minute headways.
to leave a night early to ensure they make
scheduled meetings.26

26 PwC, NYC Airport Study, 2016.

24 A Vision Plan for JFK

As the Airport continues to grow, accessing
JFK will only become more difficult. This
growth will make roadway congestion to
and from the airport even worse than it is
today, increasing travel times for passengers,
employees, and those travelling in general
proximity to the airport. However, not only
is improved transportation access needed
to accommodate the growing passenger
demand of JFK, but improvements are also
critical in order for the airport to remain
competitive globally. Today, JFK is well
behind other world-class international airports
when it comes to transportation access.
Cities such as London, Shanghai, Hong Kong, at the time the JFK AirTrain began service.
Seoul, Chicago, Moscow, Amsterdam, and Preliminary data estimates JFK AirTrain
many others, have a one-seat ride directly ridership will reach 12 million paying
from the central business district to the passengers transferring from Jamaica and
central terminal area, in addition to multiple Howard Beach and over 30 million total
other modes of access. riders by 2026 and continue to grow over
four percent per year.27 In addition, a 2016
There is a strong passenger demand for survey reported 78 percent of JFK business
improved rail access to JFK. Last year, passengers said they would use a one-seat
over seven million people rode the AirTrain ride from Manhattan.28
to JFKnearly tripling the ridership since
the first year of operation 12 years prior.
27 Port Authority of New York and New Jersey.
This growth far exceeds projections made 28 PwC, NYC Airport Study, 2016.

25 A Vision Plan for JFK

Consequences
of Failing to Act
Over the past five years, passenger activity at Based on the trends reported in the latest
JFK has reached record high levels with each FAA Terminal Area forecasts for JFK, the
year surpassing the year that preceded it. Airport should be planned and developed
In 2016, the Airport handled 60 million total to accommodate 75 million passengers
passengers, up from 57 million passengers in within the next 10 to 15 years and 100
2015. million annual passengers within the next
35 years, increases of nearly 15 million
Continuing the existing, status quo passengers and 40 million passengers,
development approach for the airport respectively, over todays levels. In order to
will leave JFK ill-equipped to adequately remain competitive in a 21st century global
accommodate future passenger growth. economy, JFK requires a comprehensive
Once capacity at the Airport is reached, airport-wide master plan establishing a clear
passengers will be forced to use airports overall design for development to not only
outside the region or other modes of travel, to meet the increasing passenger demand,
or perhaps not travel at all. A recent survey but also to become a world-class airport
found that one in four frequent business worthy of serving the greatest city in the
travelers purposely did not attend at least one world. A failure to create such a master plan
meeting in New York because of the hassle of and a failure to transform JFK into a globally
travel to and from JFK airport.29 competitive airport would have long-lasting
impacts to the strength of New Yorks and the
Not addressing this deficiency would be
regions economy.
enormously detrimental to the economies
of the City, State, and the region. For each
million passengers not accommodated, the
New York/New Jersey region loses $140 For each million passengers
million in annual wages, $400 million in annual not accommodated,
sales, and 2,500 jobs. Under the existing
the New York/New Jersey
terminal configuration, as early as the mid
2020s, JFK demand will exceed capacity. region loses $140 million in
New York Citys status and the regional annual wages, $400 million in
economy will be seriously threatened as long annual sales, and 2,500 jobs.
as JFK is left unaddressed.

29 PwC, NYC Airport Study, 2016.

26 A Vision Plan for JFK

27 A Vision Plan for JFK
Vision Plan for JFK

The Panels recommendations for JFK are project executive to develop and implement
based on a pragmatic approach to redevelop an airport-wide master plan consistent with
and transform the Airport into a modern, the recommendations of the panel.
advanced air transportation facility that puts
the passenger first and that can respond Given that the piece-meal, ad-hoc, and
appropriately to the airports relentlessly inconsistent project-by-project development
growing demand. of the past can no longer continue, the Panel
recommends a number of both incremental
The Panels recommendations for JFK and transformative improvements to the
are based on a pragmatic approach to airport in the short, medium and long-term.
redevelop and transform the Airport into The Panels recommendations for JFK focus
a modern, advanced air transportation on improving passenger experience and
facility that puts the passenger first and that optimizing land and airspace use, while
can respond appropriately to the airports expanding economic opportunities for the
relentlessly growing demand. The Panels Borough of Queens and the region. Further,
recommendations serve as a conceptual the Port Authority should continue to be a
guide for the Airport, but require further good neighbor by joining with the surrounding
detailed refinement through a larger master communities to create opportunities for
planning effort. The Panel recommends economic development, while preserving
that the Port Authority create a new JFK local recreation and wildlife.
redevelopment office headed by a single

28 A Vision Plan for JFK

Accommodate Growing Demand and Provide for a Consistent,
World-Class, and Secure Passenger Experience.

AIRPORT TERMINALS of Terminal 5 also has the option to expand

Overall, the Panel calls for a more efficient its footprint into the former Terminal 6 area.
use of land within the Airports central The Port Authority should promptly engage
terminal area in order to provide for an in discussions with the Terminal 5 lessee to
enhanced passenger experience. The Port expand their terminal in a manner consistent
Authority should develop global, world- with the Panels recommendations for a more
class standards applied to all JFK terminals unified airport. An extension of Concourse
to ensure a more consistent passenger A at Terminal 4, which has been previously
experience. The Airports development explored by the private operator, can be
should enhance connectivity between initiated as soon as the permitting processes
terminals and provide optionality for future are complete and approved by the Port
passenger growth. Authority Board. Infrastructure improvements
should be evaluated to advance the goal of
The Panel recommends that the airports a more unified airport. Lastly, an area known
older terminals, (Terminals 1, 2, and 7) should as Parcel M located adjacent to Terminal 8,
be redeveloped as larger, modern, efficient has long-been identified for development and
facilities consistent with global, 21st century should be planned for phased expansion of
airport standards and amenities. The Port Terminal 8s footprint to provide for additional
Authority should work with the private lessees airline gates as they are needed.
of these terminals to formulate a development
plan (including location and footprint) for Redevelopment of the airports terminals
these terminals that is consistent with the is expected to be financed through
Panels recommendations for interconnected private funds and requires commercial
terminals, moving towards a more unified agreements with the respective terminal
airport, and that evaluates the retention or lease holders. Therefore, it is incumbent on
modification of existing infrastructure in light the Port Authority to create and implement a
of this goal. consistent commercial agreement framework
with well-defined guidelines for a 21st century
The airports newer terminals (Terminals 4, 5, airport to facilitate a consistent, state-of-the-
and 8) should be retained and expanded to art, safe, secure and high quality passenger
enhance passenger experience and provide experience within all terminals.
additional gate capacity. This process began
in December 2016, when Governor Cuomo
and others broke ground with an entirely
privately-financed conversion of the historic
Saarinen building (former TWA Flight Center)
into a new world-class 505-room hotel just
outside Terminal 5. The current private lessee

29 A Vision Plan for JFK

30 A Vision Plan for JFK
AIRPORT ROADWAYS AIRSIDE AND OPERATIONAL
IMPROVEMENTS
The roadway network within the Airport
should be simplified to move toward a ring Taxiways
road concept (to be developed over time)
with new and expanded parking facilities in To provide for additional taxiway space at
the center that would increase parking for the Airport and to reduce ground delays,
all passengers. Along with improved way- Taxiways A and B, located along the west
finding a ring road concept would maximize edge of the Airports central terminal area
the efficiencies for vehicles within the airports should be shifted westward and straightened,
roadways. New terminal frontages would opening up additional space for passenger
need to be developed with sufficient capacity terminal development at Terminal 8, and
to handle growing volumes of vehicles. improving the efficiency of these airport-
critical taxiways by providing unimpeded
circular flow around JFKs central terminal
area. Additional taxiway space around the
airports central terminal area may be needed,
particularly during peak activity.

Operating Limitations (Slot Controls)

In April 2016, the FAA announced that
Newark Liberty International Airport (EWR)
would move from a Level 3 slot controlled
airport to a Level 2 Slot Coordinated Airport,
which would improve operational procedures
at EWR. JFK should receive similar relief in
order to allow for passenger demand and
the needs of the traveling public to govern
the growth of the airport as opposed to
federal operational restrictions. The Port
Authority should work with the FAA to modify
or eliminate federal limitations on JFKs
operations to provide for additional service
at the airport. The Port Authority should
also work with the regions Congressional
Delegation to ensure the funding for the
implementation of NextGen technology into
the nations air traffic control system.

31 A Vision Plan for JFK

Expanded and Improved
Transportation Access to the Airport

The Panel makes a number of Additional short-term roadway improvements

recommendations based on input from to ease congestion identified by NYSDOT
multiple stakeholders to expand and include restriping the Long Island Expressway
improve transportation access to the airport. Ramp to eastbound Grand Central Parkway,
Together, these options will significantly relocating the Linden Boulevard Ramp at
improve travel to and from the airport. the Van Wyck Expressway northbound
exit, and continuing to invest in Intelligent
ROADWAY ACCESS Transportation Systems (ITS) and Active
Transportation and Demand Management
NYSDOT has identified a number of short-
(ATDM) Programs.
term and long-term projects to improve
roadway access to JFK. Two projects Other long-term projects identified by
identified by NYSDOT that would provide NYSDOT include addressing road access
for immediate improvement in accessing choke-points including the Grand Central
the airport are: 1) reconstruction of the Parkway and Brooklyn Queens Expressway
interchange at Kew Gardens to provide for interchange and exit ramps, the Long Island
three lanes on the access ramps in both Expressway and Grand Central Parkway
directions, and improve one of the worst interchanges, the Westbound Nassau exit to
JFK roadway access bottlenecks, and (2) Belt Parkway and North Conduit Avenue, and
an expansion of the Van Wyck Expressway the Long Island Expressway collector and
from three lanes to four lanes utilizing existing distributor roads between 97th Street and
right of way terminating at the airport. The 108th Street.
fourth lane could be used as a Managed Use
Lane dedicated exclusively to airport traffic,
including express bus service and other high
occupancy vehicles.

32 A Vision Plan for JFK

33 A Vision Plan for JFK
SECURITY CARGO AND SUPPORT FACILITIES
JFK must continue to remain one of the Consistent with previous studies, the
safest and most secure airports in the world. Panel recommends increased access to
As the Airport is developed and continues updated, affordable, and right-sized cargo
to grow, the Port Authority must remain ever and industrial spaces at JFK.31 The Panel
vigilant and maintain safety and security of recommends a major consolidation of these
passengers, employees, and the surrounding facilities in a planned, efficient configuration
community as the top priority of the airport. far different from todays layout. These new
As the Port Authority develops JFK in and expanded cargo facilities should be
accordance with an airport-wide master plan located in the north area of the airport for
setting a strategic path for the development convenient road access to off-airport cargo
of terminals, roadways, and the airfield, the operations. With any new cargo facilities,
Port Authority must include flexibility to add the Port Authority should comprehensively
technology-based security advances. review on-airport cargo leasing and business
practices to ensure the cargo operations
The Panel recommends a regular top-to- continue to offer the essential global
bottom security review that includes outside, connections for the State of New York and
third-party experts with global, best-practice the region.32
knowledge to assure that security procedures
get updated with the latest technological Through a master plan, other support
advances. Following the false active shooter facilities such as cogeneration, fueling,
incident in August of 2016, Governor Cuomo aircraft maintenance, aircraft deicing during
and U.S. Department of Homeland Security inclement weather, and airport operations
Secretary Jeh Johnson initiated a Multi- should be carefully evaluated to ensure a
Agency Security Review Team of the incident minimized footprint in appropriate locations
to ensure the airport is ready to dynamically for the service provided. This will allow far
respond to evolving threats. A major more space for the terminals to grow and
recommendation of the Review Team was to develop to serve the 21st century passenger.
implement a unified operations center and for
all agencies at the airport to continue to work
together to ensure the safety and security
of JFK.30 This is an example of the type of
review that the Port Authority should
undertake on a regular basis at all of its
airports.

31 New York City Economic Development Corporation and Port

Authority of New York and New Jersey, JFK Air Cargo Study, January
2013.
32 New York City Economic Development Corporation and Port
30 New York State Governors Office, John F. Kennedy Authority of New York and New Jersey, JFK Air Cargo Study, January
International Airport Multi-Agency Security Review Team, 2016. 2013.

34 A Vision Plan for JFK

MASS TRANSIT IMPROVEMENTS In addition to an improved transfer experience
at Jamaica, JFKs existing, crowded AirTrain
JFK is well behind other world-class
system could be expanded from two cars to
international airports when it comes mass
four cars per train, and headways should be
transit access to the airport. The Panel
reduced to provide for more frequent train
recommends consideration of two courses of
service. Such an expansion would create the
action:
capacity to more than double the number of
Working with the Panel, the MTA has passengers of todays paid ridership of over
developed a preliminary plan to overhaul seven million annually (and total ridership
the LIRR/AirTrain Jamaica station and the of over 20 million annually) and reduce
Sutphin Blvd-JFK subway station to improve the number of passengers and employees
the connection between the AirTrain and accessing the airport by car.
the LIRR and New York City subways. The
The Panel also recommends that the MTA and
preliminary plan involves using state-of-the-
the Port Authority conduct a comprehensive
art enhancements to make airport customers
analysis on rail access to JFK, including the
access to and from AirTrain far easier than
possibility of a one-seat ride to JFK Airport
it is today. The overhaul would include the
from Penn Station New York, Grand Central
installation of high-performance escalators
Terminal, and/or Brooklyns Atlantic Avenue/
and elevators to provide swifter and more
Barclays Station to JFK.
convenient passenger movement between
station levels and provide an experience of
feeling at the airport.

35 A Vision Plan for JFK

36 A Vision Plan for JFK
Leveraging Private Capital
and Public Private Partnerships

Airports around the world are leveraging price tag is financed with private funds
public sector investment to stimulate massive and existing passenger fees. Currently,
private sector investment. Airports around Denver Airport is engaging in private sector
the world are leveraging public sector investment of over $1 billion to overhaul a
investment to stimulate massive private key part of that airport. This comes shortly
sector investment. In March 2016, the Port after Denvers Regional Transportation District
Authority approved a $4 billion public private (RTR) used an innovative financing package
partnership to tear down the existing Terminal with private equity and federal-low cost loans
B at LaGuardia Airport and replace it with and grants to support the development of a
a new 21st century state of the art terminal transit line to the airport.33
and new central hall to unify for the first time
Terminal B with Terminal C. The project is Internationally, many world-class airports
the largest public private partnership in the have utilized innovative means of attracting
United States. Two-thirds of the $4 billion private capital and investment. From
Melbourne and Sydney airports in Australia,

33 Denver Regional Transportation District.

37 A Vision Plan for JFK

 to the United Kingdoms major airports To deliver a 21st century JFK on the scale
including Londons Heathrow and Gatwick, envisioned by the Panel, the Port Authority
to Amsterdams Schiphol airport, to Frances should employ a wide range of innovative
Airports de Paris operated airports a wide financing tools for the airports redevelopment
range of world-class facilities have utilized to maximize private sector investment and
private capital. In the United States, full innovation, particularly at its terminals. As
airport privatizations are restricted under the countries around the world continue to
FAAs airport privatization pilot program, and utilize private sector capital and innovation
that is not being suggested as appropriate to deliver infrastructure projects, the Port
for JFK. Nevertheless, it is important to Authority should utilize its public funds to
point to the great deal of long-term private leverage private financing to the maximum
capital with experience in airport investing extent possible to develop new state of
and operations. Creatively tapping into that the art airport facilities consistent with the
private capital and expertise can help finance Panels recommendations for the Airport. In
and fund some of the long-term infrastructure some areas, terminal redevelopment may not
improvements suggested in this report. require any Port Authority investment at all. In
some projects such as JFK AirTrain, the Port
JFK itself has a history of developing Authority should consider leasing the current
privately financed terminal improvements. operation to a private operator to expand the
The redevelopment of Terminal 4 paid for system based on private capital investment.
with private capital, created a large modern
terminal that, together with Delta Air Lines With a comprehensive airport master plan,
recent over $1 billion investment, has the Port Authority can direct capital spending
created one of the better facilities at the in a cohesive, consistent manner to leverage
Airport. Tapping this heritage of innovation development at the Airport.
and utilizing creative partnerships can yield
both capital and expertise from world-class
operators to modernize JFK for the 21st
century.

38 A Vision Plan for JFK

Conclusion

The Panels Vision Plan for JFK offer the and improved transportation access will
opportunity to transform the facility into a enable the JFK of the future to continue to
world-class airport befitting of the State of compete in the international market. As a
New York. The recommendations provide whole, the implementation of the Panels
for immediate improvements in the short recommendations for JFK will transform the
and medium-term, as well as position the existing facility into the world-class airport
airport to accommodate long-term passenger and the nations premier international gateway
growth, and create a consistent airport- that the State of New York and the region
wide, world-class passenger experience. deserve. With the leadership and vision that
Reconfigured terminals, redesigned delivered a new LaGuardia, so too will there
roadways, increased airfield capacity, a be a new JFK.
revitalized and more efficient cargo operation,

39 A Vision Plan for JFK